REDUCE

AND REF US E,

RECYCL E

AND R EP L ACE

A PLASTICS ROADMAP FOR FINLAND

R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE
 A P L AST ICS ROA D MA P FO R FI N L A N D

Foreword 4

Introduction 6

PROPOSALS FOR MEASURES

; Reduce littering and avoid

unnecessary consumption 10

)
€
Study the possibility
to introduce a tax on plastics 12

V Increase significantly the recovery

of plastic waste 14

6 Improve the identification of plastics in buildings

and sorting of plastic waste at construction sites 16

O Promote the recycling and replacement

of plastics in agriculture and horticulture 18

0 Introduce diverse recycling solutions

for recovered plastic 20

- Invest in a big way in alternative solutions

and set up a New Plastics knowledge network 22

u Raise the plastics challenge high

on the international agenda of Finland 24

i Export expertise
and solutions 26

& Enhance research knowledge on negative health and

environmental impacts of plastics and solutions to these 28
 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

Foreword
Plastics have many good and important qualities, which is why they are
used so much and why they have a key role in our economy. However,
plastics also cause problems to which there are no easy solutions. Among
the topics widely discussed in the media, in the EU and in international
forums is marine litter.
The challenges related to plastics and the interest and lively discussion
they give rise to urge us to act.
This Plastics Roadmap sets out a number of actions by which we can
reduce the harm caused by plastics, avoid unnecessary consumption,
improve the recycling of plastics, and find alternative solutions to replace
plastics. The aim was to discover concrete practical measures to get started
as quickly as possible.
The roadmap points out the first steps towards a new, sustainable
plastics economy. While the implementation of most of the proposals can be
launched immediately, some of the measures require additional resources
and a longer term to be implemented. What we need is awareness raising,
changes to consumer habits, research, product planning, technologies,
markets, development work, and legislation and policies.
The roadmap was prepared by a broad-based working group appointed
by the Ministry of the Environment. This work was supported by an expert
secretariat, which was also responsible for writing the report. A large group
of stakeholders and members of the public participated in the preparatory
work. Online idea generation was used to compile hundreds of ideas and
comments to serve as the basis for the preparation. So far, it has not been
possible to make use of all the ideas. As the work progressed, two large
workshops were organised to elaborate the themes selected to the road-
map, and the proposals for measures were prioritised. Members of different
parliamentary groups were also involved in the process, and the ministerial
group for the Government key project concerning the bioeconomy and
clean solutions followed the progress of the preparation.
Preparing this roadmap has been a rewarding process. It has brought
together a growing number of enthusiastic and competent agents willing to
commit themselves and do what it takes to solve the plastics challenge. We
wish that in the years to come this roadmap will inspire even more people
and stakeholders to take part in our joint effort.
For Finland, the plastics challenge is also an opportunity.

Hanna Kosonen Tuula Varis

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WORKING GROUP:
Chair Member of Parliament Hanna Kosonen
Vice Chair Director General Tuula Varis, Ministry of the Environment
Members Director General Ilona Lundström (Ministry of Economic Affairs and
Employment), Director Jari Keinänen / Ministerial Adviser Hanna Korhonen
(Ministry of Social Affairs and Health), Ministerial Adviser Pirjo Salminen
(Ministry of Agriculture and Forestry), Senior Government Adviser Merja
Sandell / Ministerial Adviser Krista Sinisalo (Ministry of Finance), Senior
Adviser, Environment Anna-Maija Pajukallio (Ministry of the Environment),
Managing Director Vesa Kärhä (Finnish Plastics Industries Federation), Senior
Adviser, Environment Maija Heikkinen (Finnish Forest Industries), Chief
Specialist Janne Koivisto / Chief Specialist Marja Ola (Finnish Commerce
Federation), Managing Director Riku Eksymä (Suomen Kiertovoima ry),
Managing Director Otto Lehtipuu (Association of Environment Industry and
Services YTP ry), Head of Programme Sampsa Vilhunen / Marine Conservation
Officer Anna Soirinsuo (WWF Finland), Chief Specialist Asta Kuosmanen
(Martha Organization), and Branch Manager Irina Simola / Branch Manager
Anna Vainikainen (Finnish Food and Drink Industries’ Federation).

SECRETARIAT:
General Secretary Ministerial Adviser Merja Saarnilehto (Ministry of the
Environment)
Members Ministerial Adviser Mika Honkanen (Ministry of Economic
Affairs and Employment), Senior Research Scientist Sari Kauppi (Finnish
Environment Institute SYKE), Research Professor Hannu Kiviranta (National
Institute for Health and Welfare THL), Senior Research Scientist, Senior
Customer Manager Juha-Matti Katajajuuri (Natural Resources Institute
Finland LUKE), Team Manager Maija Pohjakallio (VTT Technical Research
Centre of Finland Ltd), Specialist Riitta Silvennoinen (Finnish Innovation
Fund Sitra) and Chief Adviser Sisko Sipilä (Business Finland).

PREPARATION PROCESS OF THE PLASTICS ROADMAP

Ideas for the 1st draft 2nd draft

preparation report report
}

}
}

Actions begin

Working Stakeholder Ideas via Working Stakeholder Working Publication

group workshop 1 online group workshop 2 group
discussion
}
}

Preliminary Draft
themes measures

Roadmap prepared by the secretariat

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

Introduction
The Ministry of the Environment appointed in March 2018 a broad-based
working group for the period 1 April to 14 September 2018, tasked with
preparing a roadmap for plastics. The idea was to examine the challenges
related to plastics and potential solutions to these and to define and
prioritise short- and long- term measures to respond to the challenges.
Despite the various good qualities of plastics thanks to their performance
and lightness, there are also serious challenges involved in their use, disposal
and recycling. Now the aim is to reduce littering and unnecessary consumption
of plastics, improve the recycling of plastics, and replace plastics made from
fossil raw materials with sustainable and renewable alternatives. Responding
to societal challenges, including those relating to plastics, and turning them
into opportunities requires a broad spectrum of players, strategic choices,
solution-oriented policies, and resources for the sectors that are the most
promising in terms of achieving sustainable development. Our response to
the challenge is part of the efforts to promote a circular economy.
This Plastics Roadmap is the first proposal in Finland aimed to find diverse
solutions to the plastics challenge. Plastics are an extremely broad and com-
plex issue, and we do not even know all the factors that may be involved. The
Plastics Roadmap does not attempt to cover all aspects of the plastics chal-
lenge, but the aim was to gather ideas and suggestions from different players
and choose the most promising and significant ones to be included in the
roadmap. At the moment we do not yet know enough about plastics and their
use. As our knowledge on the topic grows, new measures will also be needed.
The Plastics Roadmap identifies measures to reduce the harm caused by
plastic waste and litter, help consumers take plastics to waste management,
improve the efficiency of plastics recovery, recycling and product design,
create conditions for investments and innovations in the circular economy,
and make us less dependent on fossil raw materials by increasing bio-based
and biodegradable solutions.
Addressing the plastics challenge requires a wide range of measures,
some of them new ones. Voluntary actions are needed as well. One good
example of the new ways to enforce the law and promote its objectives is
the Plastic Carrier Bag Agreement concluded between the Ministry of the
Environment and the Federation of Finnish Commerce. Replacing plastics
and new solutions require more research, development work in the sector,
and influencing people’s attitudes. While some of the proposed measures
could be launched and implemented quite quickly, actions spanning several
government terms are also needed, and these should be started as soon as
possible. Decisions in respect of State financing are made as part of General
Government Fiscal Plan and the Budget.

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 A P L AST ICS ROA D MA P FO R FI N L A N D

;
Reduce
and Refuse

V
Recycle
X
Replace

PLASTICS ARE NECESSARY BUT THEIR USE MUST BE SUSTAINABLE

Plastics have many good and important qualities: they are affordable,
light, durable, protective and adaptable. In the past 50 years, the global
use of plastics has grown 20-fold, and it has been estimated to at least
double in the following 20 years. Despite the fact that an increasing share
of plastics are made from bio-based materials, the World Economic Forum
has estimated that in 2050 the plastics industry will use one fifth of the
world’s oil production.
The environmental impacts of the plastics production chain are well
known. In many applications, the environmental impacts of plastics
are relatively small. Because they are light, plastics bring considerable
environmental benefits in logistics and vehicles. Protective food packages
improve storage life and prevent food loss and waste, which means that
they are beneficial for the environment.
It was only after the trash vortices circulating in the oceans were
discovered that people truly woke up to the harm caused by plastics.
The problems caused by marine litter are getting worse and worse in all
seas and oceans, including in the Baltic Sea. On one hand, chemicals are
used to improve the characteristics of plastics and, on the other, harmful
substances or micro-organisms may be bound to plastics and spread into
the natural environment. Environmental problems are caused by plastics
that end up in places where they do not belong. Microplastics represent
a new phenomenon in this context, and we do not yet know very much
about their impacts on people and the environment. All this means that
new research is needed on the various aspects of plastics.
Many countries have already reacted to the harm caused by plastics. China,
which used to be the recipient of plastic waste from Europe, has imposed a
total ban on the imports of plastic waste, and the stream of this waste has
now moved to other, less developed Southeast Asian countries. International

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

negotiations are under way on the possibility to introduce stricter transfer

procedures for plastic waste so that this would be subject to authorisation.
Many countries have imposed prohibitions and restrictions on the use of
plastics. At the same time, a comprehensive European Strategy for Plastics
has been prepared with the aim to take joint action to steer the use of plastics
towards a sustainable circular economy. The Commission has proposed a
new financial contribution by the Member States to the EU Budget, which
would be directly proportional to the amount of unrecycled plastic packaging
waste in each Member State. When discussing the legislative initiatives and
proposals, clear and unambiguous definitions for the core concepts related
to plastics, such as a disposable plastic product, should be provided.

FOR FINLAND THE SOLUTIONS TO THE PLASTICS PROBLEM

ARE AN OPPORTUNITY
On the global scale, plastics are a massive challenge for which urgent
solutions are needed. Billions of people lack appropriate waste management
and enormous amounts of plastic litter and microplastics end up in water
bodies and elsewhere in nature. Within the EU most of the plastic waste
comes from packaging materials. Disposable plastics are a burden to
waste management systems, and they also end up in nature. The use of
unnecessary packaging materials should be avoided, but this alone will
not solve the plastics problem. Solutions could be sought by developing
recycling technologies and safe, new materials to replace traditional plastic.
In terms of the economies, any solutions found to the plastics problem
mean new business opportunities. Finnish companies can be among the
leaders in this.
Finland has strong competence in biomaterials and raw materials that
offer promising opportunities to replace plastics. The production of bio-
based plastics on the industrial scale is not very common as bio-plastics
tend to be much more expensive than their fossil alternatives, which means
the feasible, scalable solutions that also work in mass production should
be found. Meeting the wishes related to materials and solutions to replace
plastics requires close cooperation and additional inputs to make sure that
promising ideas end up in the market.
On the short term, the greatest expectations are targeted to more
efficient recycling of plastics. Growing demand for better recycling solutions
is also being created by the EU. In view of the need to implement even
stricter requirements, the Member States should also be proactive and
boost the recovery and recycling of plastics other than those in packaging
materials. More efficient collection of plastic waste requires significant
improvements in the recovery of plastic waste and recycled plastics, as
well as increasing the demand for recycled plastic and its use. The plastics
value chain should be an integral part of the circular economy.

8
 Proposals
for measures
;
Reduce littering and avoid
unnecessary consumption
6
Improve the identification of
plastics in buildings and sorting
of plastic waste at construction
sites
-
Invest in a big way in alternative
Raise the plastics challenge high
solutions and set up a New Plas-
tics knowledge network
environmental impacts of plastics
) €
Study the possibility
V
Increase significantly
to introduce a tax on plastics the recovery of plastic waste
O
Promote the recycling and
0
Introduce diverse recycling
replacement of plastics in solutions for recovered plastics
agriculture and horticulture
u
i
Export expertise
on the international agenda of and solutions
Finland
&
Enhance research knowledge
on negative health and
and solutions to these
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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

;
Reduce littering
and avoid unnecessary
consumption

“Plastics do not belong in nature. The amount of plastic litter and waste
can be reduced by influencing people’s attitudes and changing the ways we
act. Sustainable consumer habits, recycling and anti-littering can be cool.”
Campaigns and events aimed at the general public are an important part
of solving the plastics challenge. They increase awareness, opportunities
for participation, and commitment. They provide answers to our efforts
to make a difference and find solutions. Good examples of successful
campaigns include the Litter Movement, plogging (pick up litter while
jogging), the Marine Litter Challenge of the Finnish Environment Institute,
and the World Village Festival, where littering is not tolerated. All of these
have also become social media phenomena.
Companies and public players have a key role in reducing unsustainable
consumption, including disposable and excessive packaging. Among
the solutions are voluntary commitments such as the Green Deal
agreements, enabling to set ambitious and observable targets and
suggest measures to achieve these. For example, the Plastic Carrier
Bag Agreement has in a short time successfully reduced the use of
plastic bags. Companies and other stakeholders can also commit to
tackling the plastics challenge with material efficiency commitments
and the Society’s Commitments to Sustainable Development.

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 A P L AST ICS ROA D MA P FO R FI N L A N D

Besides the voluntary measures, bans and other regulations can also be
imposed if considered necessary. The prohibition on littering in the Waste Act
allows to impose a fixed fine of e.g. EUR 100 for violating it. The quite recent
;
)
legislative initiative by the European Commission (of May 2018) proposes a
significant reduction in the consumption of certain single-use food packages €
as well as direct bans on certain disposable plastic items such as cutlery.

MEASURES:
→→A set of campaigns is launched that gives wide and constant visibility
V
to the plastics challenge, highlights solutions and players, and
raises awareness among consumers and the general public on the
consequences of one’s actions and how each and every one can make
6
a difference. The general public is challenged to choose sustainable
alternatives to single-use items and reduce littering.
→→Green Deal agreements are implemented to reduce the use of single-
O
use packaging and overpackaging as well as littering. An operating
model is designed for businesses using disposable packaging such as
cafés, fast food restaurants and other companies offering takeaway
0
-
services, which may include a separate fee for single-use containers as
an incentive. The use of Finnish tap water instead of bottled water is
promoted e.g. by encouraging cities, hotels and restaurants to visibly
offer tap water.
→→Cities and municipalities, event organisers and other agents
are challenged to introduce solutions that reduce littering and
u
unnecessary consumption, including by improving waste collection
and the instructions on this, ensuring anti-littering and good recycling
practices in public events, or restricting smoking on public beaches.
i
Implementers and partners: Ministry of the Environment, Sitra, cities
and municipalities, Martha Organization, Finnish Plastics Industries
Federation, others participating in preparing the Plastics Roadmap and
&
operators in the sector

Quotas from online ideas and comments

” ”
Collection points into good It should be possible to
shape and a broad TV and radio buy food without buying
campaign on the benefits of recycling the (plastic) package.
and how to do this in practice.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

)
Study the possibility
€

to introduce a tax on plastics

Financial instruments can also be used as target-oriented means to

influence the use of plastics, thus reducing the harm they cause, including
littering. In the broad sense financial steering instruments may be
understood to include producer responsibility systems, mixing obligations
relating to recycled materials, and the pricing of products using different
kinds of deposits, fees or taxes.
For example, the efficient recycling of plastic bottles in Finland is based
on a deposit-refund system. By joining the system, the companies that

Quotas from online ideas and comments

” ”
Nuisance tax There should be a waste
on plastics that charge on the packaging
cannot be recycled or materials of these foreign
reused. products.

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 A P L AST ICS ROA D MA P FO R FI N L A N D

place beverage packages on the market avoid the packaging tax on beverage
containers and fulfil their producer responsibility obligation. The recycling
of car tyres works efficiently based on producer responsibility.
;
)
A tax imposed on single-use plastic products could reduce the use
of these items, while at the same time increasing the demand for more €
sustainable solutions to replace these. The UK Government is about to
introduce a tax on several disposable plastic products such as bottles and
takeaway packages, with the aim to boost the transition from traditional
fossil plastics to recycled and replacing materials. A tax targeted to certain
plastic products could serve as an alternative to expanding the producer
V
responsibility system, as proposed by the European Commission.
Financial incentives can also be used to improve the conditions for the
recycling of plastic and use of recycled plastic by adjusting the relative
6
prices of plastic raw materials and recycled plastic.
When considering the use of taxes and other financial steering
instruments, careful and thorough consideration is needed as to the what
O
the objectives are, what are the most feasible and cost-effective means to
reach them, and what kind of impacts they will have. Overlapping measures
and regulation should be avoided.
0
MEASURES:
→→Alternative ways to implement a tax on plastics are studied.
-
→→The impacts of a tax imposed on certain single-use plastic products
on reducing their consumption are assessed. u
→→An evaluation is conducted of the relationship between taxation and
the producer responsibility system and its expansion and the needs
and opportunities to expand the deposit-refund system. i
Implementers: Ministry of Finance, Ministry of the Environment, Ministry
of Economic Affairs and Employment
&

” ”
Tax benefits for 10 cent deposit on all plastic
products made of containers and they will
recycled plastic. disappear soon enough.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

V
Increase significantly
the recovery
of plastic waste

Recovery of plastics after their use should be far more effective than it is
today. Most of the waste plastics are packages of which 25% are recycled
in Finland (2016). The amendments to the EU Waste Directive tighten the
objectives set for the recycling of plastic containers (2025: 50%, 2030:
55%) and expand the requirement for separate collection of other plastics.
Reaching the objectives requires a number of additional measures, such as
significantly increasing the number of bring sites for plastic waste. The final
date for the national implementation of the amendments is 5 July 2020.
In addition to collection systems, boosting the recycling of packages and
other plastic items requires communication and inspiring consumers and
business life to reduce the use of plastics, sort and recycle plastic waste, and
use products made of recycled plastic. The Ämpäristöteko (‘Bucket Action’)
campaign organised by the Finnish Plastics Industries Federation in June
2018 proved that people have the interest and enthusiasm to collect plastic.
Among the aims of the European Strategy for Plastics is to ensure
that all plastic packages entering the EU market will be reusable or easy
to recycle by 2030. In terms of recycling, the most problematic are the
composite plastics and their growing use. New solutions are required for
the ecodesign and recycling of these materials. In future, the collection

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 A P L AST ICS ROA D MA P FO R FI N L A N D

systems may be influenced by the growing use of biodegradable plastics

and the composition of products containing plastics and packages ordered
online from outside the EU.
;
MEASURES: )
€

→→The requirements for separate waste collection are amended and the
recovery of packaging plastic is significantly increased by expanding
the property-specific and regional collection systems and organising
neighbourhood collection points for areas with detached or terraced
V
houses. There is better collaboration between package manufacturers,
municipalities, waste management companies and other actors in the
collection of plastic packaging waste. Sorting of waste is promoted by
6
pricing.
→→Experiments are launched to investigate the alternative ways to
implement the separate collection of different types of plastic
O
waste. To improve the quality of recycled plastic, cleaning, recycling
and refining technologies for plastic waste are developed and
tested, including the possibility to collect plastic packaging waste
0
and other plastic waste in the same container. Collection systems
are designed to be user-friendly and efficient. Awareness is raised
among consumers and companies and advice on recycling plastics is
-
disseminated.
→→Means are found to ensure recyclability in designing plastic products
and composites. Product groups are identified where a certain share of
u
recycled plastic could be required.

Implementers and partners: Ministry of the Environment, municipalities,

i
waste management companies, producer responsibility organisations,
Finnish Plastics Industries Federation, VTT Technical Research Centre
of Finland, Martha Organization, WWF Finland, other organisations and
operators in the sector
&
Quotas from online ideas and comments

” ”
Property-specific recycling Numerous actors in the
should be increased to collection process where
provide easy access to collection the key customer is the plastics
points for all (e.g. no driving producer, instead of the consumer.
needed).

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

6
Improve the identification of
plastics in buildings
and sorting of plastic waste
at construction sites

Construction uses a lot of plastics and even more accumulates in buildings

in connection with use-phase maintenance, additional installations and
repairs. The construction sector is in fact one of the most significant
users of plastics, but not very much plastic is recovered when buildings
are being demolished. To enhance the recovery of plastics we need better
identification of plastics used in construction and more efficient demolition
practices, separate collection and recycling systems and, eventually,
utilisation of plastic waste.
Of the plastic used in construction, different kinds of packaging and
single-use plastics are the easiest to recover and recycle, and it is also
possible to introduce solutions that replace plastics and reduce their total
amount in structures.
Overall, the reuse and recycling of plastics could be facilitated by better
access to information on plastic products used in a building.

16
 A P L AST ICS ROA D MA P FO R FI N L A N D

;
MEASURES:
→→An inventory is taken of the amount and recycling potential of plastics
in the built environment.
→→Guidelines are prepared for the sector on reducing packaging
plastics in construction. A Green Deal agreement on the reduction of
packaging plastics in the real estate and construction sector will be
)
€

concluded in 2019.
→→Opportunities are sought to improve the material efficiency of plastics
in structures and building services engineering systems, reduce the
V
total amount of plastics, and increase the utilisation rate of recycled
plastics with alternative solutions in cooperation with the real estate
and construction sector.
6
→→A product fiche model is designed for buildings which can be attached
to the information model used in designing buildings or construction
permit information. The fiche facilitates the identification of plastics
O
0
and improves their utilisation potential in connection with repair and
demolition work.
→→ Together with ARA and Senate Properties, a plan is prepared on reducing
of plastics and increasing the recycling rate of plastic waste as well as
on the use of recycled plastics in construction in 2019. Experiments are
carried out with public procurement project where these measures are
-
applied in the design, construction, repair or demolition of buildings.

Implementers and partners: Ministry of the Environment, SYKE, ARA,

u
i
Senate Properties, Confederation of Finnish Construction Industries,
Finnish Plastics Industries Federation, Association of Finnish Local and
Regional Authorities, KEINO Competence Centre for sustainable and
innovative public procurement, VTT, Sitra

&
Quotas from online ideas and comments

” ”
Ageing surface treatment Labelling of plastic-free
materials like paint and products can be used
varnish create microplastics/ as an attribute in competitive
indecomposable fractions. Solutions tendering. Preferred option in public
are needed for this – paint is being procurement as well.
removed without protection and
waste collection.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

O
Promote the recycling
and replacement of plastics
in agriculture and horticulture

In agriculture and horticulture relatively large amounts of plastics are used

e.g. in greenhouses, mulch and the handling of silage. Plastic sacks and
canisters are used for fertilisers and pesticides. A cooperation network and
a company offering pickup services already exist for the recovery of plastics
from farms. As a rule, however, the recycling of agricultural plastics is not
yet efficient nationwide and lots of used plastics are left on the farms.
The main problem in recycling agricultural and horticultural plastics and
provision of recycling services is the separation of different types of plastics
and the impurities accumulated in e.g. plastic used for silage. In terms of
the environment, a particular problem is the degradation of plastics used
in multi-annual mulch in the Finnish climate and the resulting microplastic
litter.
Plastic packages used in agriculture are subject to producer responsibility.
There are reception terminals established by producers where plastic
packaging waste can be delivered free of charge. However, the producer
responsibility for packaging only applies to the packaging of products
professionally placed on the market, while plastics used for packing
feed used on farms are excluded. More collaboration between different
stakeholders is needed to improve the efficiency of recycling.
Fruit and vegetable farms already use some biodegradable mulch and,
especially for annual plants, different kinds of biodegradable films are

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 A P L AST ICS ROA D MA P FO R FI N L A N D

replacing the use of plastic for covering the soil. Some of the solutions
that are called biodegradable are not 100% biodegradable, but bio-based
alternatives for these exist and new ones are being developed. Investments
;
)
in this development work are needed and functional and fully biodegradable
alternatives should be made an attractive choice. €
The latest solutions include liquid mulch which can be used to replace
plastic and pesticides (e.g. glyphosate) and which also has properties that
improve the growth potential of the soil. For example, international patent
protection has been applied for liquid mulch material developed in Finland
that is made from domestic wood- and plant-based natural raw materials.
V
MEASURES:
6
→→Cost-effective solutions and appropriate steering instruments are
sought for more efficient recycling of agricultural plastics, and regional
cooperation is increased also with actors outside the scope of
O
producer responsibility. More advice on recycling is provided to farms.
Alternative materials to agricultural plastics are developed.
→→Investments are made in the development and introduction of new,
0
bio-based and fully biodegradable mulch materials, including the
verification of their biodegradability and testing different solutions
in different application areas. Replacing fossil-based plastics with
-
bio-based alternatives e.g. in the mulch for perennial plants is also
encouraged by further expanding the scope and developing the
environment payment scheme of the Rural Development Programme. u
→→Awareness is raised of the impacts of plastics on the soil and more
information and training materials on the issue is provided. The main
sources of microplastics in agriculture and horticulture are identified
and measures are sought to reduce these by over 50 per cent.
i
Implementers and partners: Ministry of Agriculture and Forestry, Natural
Resources Institute Finland, SYKE, companies, Evira
&

Quotas from online ideas and comments

”
Plastic waste from hay bales is clean but
nobody seems to want it...could they?

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

0
Introduce diverse
recycling solutions
for recovered plastic

Recycling of plastics is a multi-stage process which includes the recovery,

transport, sorting and processing of waste plastic and manufacturing new
products from the secondary raw material. The selection of the recycling
process depends on the place where the plastic waste was created, its type
and volume, and the requirements for the new products to be manufactured.
It should also be noted that not all waste plastics are suitable for recycling
but their controlled use for energy is a better option.
There are many solutions to processing plastic waste, from mechanical
to chemical ones. Besides solutions suited to large volumes, small-scale
solutions are needed as well. In all recycling and recovery solutions it is
important to pay attention to the management of harmful substances
and to the safety of secondary raw materials and products. Mechanical
recycling is the best suited to uncontaminated plastic waste that is in
good condition, while a large share of poor-quality plastic not suitable for
mechanical recycling can be recycled and processed chemically. Chemical
methods can be used to manufacture source materials for new chemicals
and plastic raw materials from waste plastic, or fuel, and they also enable
to eliminate all or part of the harmful substances. New biotechnological
methods can further expand the opportunities for recycling plastics. The
future solutions are likely to be increasingly based on the combination of
different technologies.

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 A P L AST ICS ROA D MA P FO R FI N L A N D

The introduction of new recycling solutions depends a great deal on

whether there is enough waste plastic available and what kind of market
there is for recycled plastic and other products refined from plastic waste.
;
)
Similarly, a well-functioning recycling market requires extensive cooperation
between operators in order that traditional one-way value chains can be €
effectively incorporated into a circular economy model. In the initial phase,
the public sector may have a significant role in facilitating new cooperation
models and business operations.
The majority of plastics recycling in Europe is mechanical recycling, while
the share of chemical processes is still less than 2 per cent. The chemical
V
treatment of plastic waste is, however, emerging as a feasible method in the
development of plastics recycling solutions and value networks. Pilot plants
are already in use in Finland and a full-scale plant is also being planned. It
6
should be noted that the use of plastic waste as energy is not considered
recycling. O
MEASURES:
→→Recycling solutions suitable for different value chains are promoted.
Projects are launched to strengthen cooperation between operators
0
and the sorting and processing competence in companies and
research institutes required for well-functioning recycling. -
→→Assessment is made of the feasibility and effects of chemical recycling
in Finland. The potential of chemical recycling and the framework
conditions involved are examined. u
→→Based on these, one or two full-scale plastic processing plants and a
chemical recycling unit or units are set up as separate projects or as
part of the existing chemical industry. i
Implementers and partners: Ministry of Economic Affairs and
Employment, VTT, BF, Sitra, Finnish Plastics Industries Federation,
companies and other operators in the sector
&

Quotas from online ideas and comments

”
Recycling percentages registered too easily by shipping mixed goods
that are difficult to recycle to Asia, where rejects from manual sorting
end up in practically non-existent waste management.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

-
Invest in a big way in alternative
solutions and set up a New
Plastics knowledge network
Bio-based materials replacing traditional plastics offer important
opportunities to Finnish research, product development and production. There
is a global need for safe, bio-based, recyclable and, in certain uses, also fully
biodegradable packaging. Bio-based materials can also provide an alternative
that replaces plastics in construction. Finland has strong competence in
biomaterials and raw materials that offer promising opportunities to replace
plastics. Nevertheless, fulfilling the wishes concerning the materials and
solutions to replace plastics requires even closer cooperation, as well as
additional investments in research and innovation and scaling the production
to ensure that promising ideas end up in the market.
The aim is to introduce several novel replacement solutions to the
international market within the next five years and to boost and expand the
operations of the existing companies, particularly start-ups and SMEs. At the
same time, there is a need to assess the sufficiency and usability of replacement
materials and their raw materials and the relationships between these, as well
as their properties and effects from the perspective of the environment, health
and safety, recyclability and waste management. In the future, different kinds
of composites combining plastic and bio-based materials may increasingly
replace plastics, which means that their impacts must also be assessed with
care. An internationally approved basis for the assessment and concepts must
be created and standardisation developed to support the assessment.
The additional investments must be supported by an unbiased
coordinating body that follows and makes efficient use of international
research and innovation in the field and strengthens cooperation and

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 A P L AST ICS ROA D MA P FO R FI N L A N D

networking between research, companies and administration necessary for

the development and implementation of replacement materials. Another
important task is to promote the efforts to obtain more funding from the EU
;
)
for building a sustainable plastics economy.
€
MEASURES :
→→ A national programme is launched and funding is allocated to the
development of new value networks for the solutions, materials and
technologies to replace plastics, as well as to business models developed
V
jointly by various stakeholders. The needs and goals of the programme
are prepared in extensive cooperation from the perspective of both
material and product manufacturers and users, and various consortiums
6
can apply for funding from the programme. In addition to national
benefits, the programme aims to find solutions to global challenges and
strengthen the international competitiveness of Finnish companies. The
O
development of solutions to replace plastics ensures the comprehensive
safety and environmental sustainability of the products (besides the
production chains, the recyclability or biodegradability of products over
their entire lifecycle).
0
→→Cooperation between those operating in the value chains e.g. in
developing food packaging is strengthened.
-
→→ The New Plastics Finland knowledge network will be established as part
of the programme. The aim is to enhance the material competence of
companies, strengthen the value chains of plastic recycling and research,
u
disseminate knowledge on solutions to replace traditional plastic, and
develop standardisation and unite the network with key international
forums in the field. The knowledge network supports political decision-
making and creates pressure to bring forth innovative solutions to replace
i
plastics and recycling. The activities of the network can be supported e.g.
by an artificial intelligence solution developed for database management. &
→→Development projects are launched to boost both wood-based products
and products based on agriculture and side-streams to sustainably
replace plastic. Research institutes and companies are invited to
participate in the cooperation network for the projects. The aim is to
create new business in Finland.

Implementers and partners: Ministry of Economic Affairs and Employment,

Ministry of Agriculture and Forestry, Ministry of the Environment, Finnish
Industry Investment TESI, VTT, Luke, SYKE, Sitra, Finnish Plastics Industries
Federation, Finnish Forest Industries Federation and other industrial
associations, Academy of Finland

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

u
Raise the plastics challenge
high on the international
agenda of Finland

The European Strategy for Plastics adopted in January 2018 leads the
way for the measures used by the EU and its Member States in rising
up to the plastics challenge. Finland’s Plastics Roadmap contributes to
the implementation of the European Strategy for Plastics. It also draws
attention to the best examples and strengthens Finland’s visibility in
nationally important questions.
In December 2017 the UN Environment Assembly (UNEA-3) established
an intergovernmental working group to discuss global solutions to the
plastic litter problem. The themes of the joint Nordic Programme on
plastics include microplastics in coastal waters and plastic debris in the
Arctic marine areas. The focus and forms of future cooperation are currently
under preparation. The Baltic Marine Environment Protection Commission
(HELCOM) has decided on cooperation in the Baltic Sea area to reduce
marine litter. The Baltic Sea Action Plan will be revised during the Finnish
HELCOM Presidency in 2018–2020.
Other important cooperation forums include the Arctic Council and
several international conventions.

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 A P L AST ICS ROA D MA P FO R FI N L A N D

;
MEASURES:
→→Implementation of the measures of the European Strategy for Plastics
is front-loaded and information is provided about Finnish solutions

)
and operating models that are important for Finland. The plastics
challenge is high on the agenda in the preparation and events of €
Finland’s Presidency of the Council of the EU (1 July–31 December
2019).
→→Further measures are promoted at the EU level to strengthen the
recyclability and ecodesign of products containing plastic, and growing
V
amounts of recycled plastics are used in products.
→→Further international measures are promoted to mitigate marine litter,
and the plastics question is highlighted in the Nordic and Arctic co­
6
operation and HELCOM cooperation for the protection of the Baltic
Sea.
O
Implementers and partners: Ministry of the Environment, Ministry of
Economic Affairs and Employment, other ministries, operators in the
sector
0
-
u
Quotas from online ideas and comments i
&
” ”
We have the Kyoto climate One of the themes of Finland’s
agreement – why not also EU Presidency could be how
have a Helsinki no-litter agreement the EU could act to solve global
where countries commit to plastic problems.
preventing waste ending up in
natural environment, by using the
carrot or the stick.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

i
Export expertise
and solutions

Plastic litter is a common problem in Asia and Africa. Especially in Southeast

Asian countries such as Vietnam, Thailand and Malesia rivers carry massive
amounts of plastic litter to seas and oceans. Resolving this problem requires
changes in the operating models locally and regionally, better waste
management, reducing the use of plastics and finding substitutes for them,
and perhaps also recovering plastic from waterways and oceans. To get the
changes started, a high level of expertise and strong cooperation between
operators is needed. Finland has a lot of expertise and companies which
can contribute to making this change happen. Examples of these include
collection, sorting, processing and cleansing technologies, genuinely
biodegradable materials, and solutions to recovering plastic from the ocean.
Business Finland (BF) boosts the development and export of Finnish
solutions. The Ministry for Foreign Affairs has several financial instruments
which support the business of Finnish companies in developing countries.
For instance, the joint BEAM programme of the Ministry for Foreign Affairs
and BF supports Finnish companies and other operators to solve global
development challenges through innovation, and under the programme
targeted campaigns can be organised particularly in developing countries.
The United Nations Technology Innovation Lab (UNTIL) to be established

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 A P L AST ICS ROA D MA P FO R FI N L A N D

in Finland may also offer new channels to develop and scale solutions,
especially in developing markets. The investment aid from PIF (Public Sector
Investment Facility) of the Ministry for Foreign Affairs can be used to boost
;
)
public investments in developing countries.
Impact investing provides a possible means to channel private equity €
to operators and projects that aim to achieve positive, measurable societal
or environmental benefits. Impact investing can increase productive
cooperation between the private, public and third sector and implement
carefully planned, long-term and front-loaded investments to respond to
the plastics challenge.
V
MEASURES
6
→→The ability of Finnish companies to develop solutions to the plastics
challenge is strengthened and their exports are promoted.
→→Targeted cooperation is launched in areas with the most serious
O
marine littering e.g. by establishing designated sites for Finland
to mentor, which serve as a showcase and stepping stone to
new solutions for responding to the plastics challenge, thus also
0
supporting the export of solutions.
→→Tests are carried out with impact investing and one of the means
to implement this, a performance-based financing agreement (SIB
-
model), in solving the plastics problem in developing economies and
countries.
u
i
Implementers and partners: BF, Ministry for Foreign Affairs, Ministry of
Economic Affairs and Employment, Ministry of the Environment, Sitra,
WWF Finland, Finnfund

Quotas from online ideas and comments

&

” ”
Allocation of develop- Efforts should be made to
ment cooperation funds promote the export of Finnish
could allow us to launch new expertise (e.g. waste management),
kinds of multilateral projects including through export campaigns
that would bring together Fin- and support and development
nish and local know-how and support to countries where inputs
resources, companies and the in waste management expertise are
third sector. needed.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

&
Enhance research knowledge
on negative health and
environmental impacts of plastics
and solutions to these

A certain amount of knowledge on the environmental impacts of plastic

litter, microplastics and the harmful substances contained in plastics exists,
but it is fragmented and there are gaps even in the quite basic knowledge.
There is also not enough information on the harmful substances recycled
plastics may contain and their impacts. It was only recently that the first
research findings on the health impacts of microplastics were published.
More information and identification of risks is needed to support decision-
making. Studies should be made based on the needs that have already
been identified, including harmful substances in plastics, microplastics in
slurry and marine litter, the topics also raised in the National Programme
on Dangerous Chemicals (KELO) and the Baltic Sea monitoring programme.
The European Chemicals Agency is currently exploring the options for
restricting the use of microplastics added to products, and the Commission
is seeking means to restrict microplastic emissions caused by the wear of
products containing plastics, such as textiles, paints and car tyres.
These studies will take several years and require international
cooperation. To succeed in international research cooperation and in

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 A P L AST ICS ROA D MA P FO R FI N L A N D

obtaining research funding, Finland also needs to conduct research on its

own. The EU has already decided on additional investments in research
on plastics as part of the current funding for the Framework Programme
;
)
for Research and Innovation (Horizon 2020) and by preparing a long-term
research strategy on plastics to steer the financing. €

MEASURES:
→→The needs for knowledge are specified to recognise the extent of
the problem. A set of research projects is launched and international
V
research cooperation on the harmful impacts of plastic, in particular
microplastics, is strengthened. In targeting research, the focus is on
the sources of microplastics, exposure to microplastics, permanence
6
and degradability of microplastics in nature, added and accumulated
harmful substances, environmental and health impacts and, if
necessary, socio-economic perspectives.
O
→→ Solutions are developed for recovering microplastics in stormwater and
wastewater as well as for utilising slurry that contains microplastics.
→→Technologies and techniques are developed that can be applied to the
0
identification of different components in plastic waste, identification
and analytics of harmful substances contained in plastics, and
eliminating harmful substances in plastic recycling.
-
→→Monitoring and regular assessment of the status of marine littering are
organised as part of the marine strategy, and research data is acquired
on the impacts of plastics on marine biota.
u
Implementers and partners: Academy of Finland, Strategic Research
Council (SRC), ministries and the Prime Minister’s Office, universities,
i
National Institute for Health and Welfare (THL), SYKE, VTT, Luke, BF,
Finnish Safety and Chemicals Agency (Tukes), cooperation with key
international agents, such as the European Chemicals Agency. &
Quotas from online ideas and comments

”
Research suffers from non-standardised observation and analysis
methods for microplastics. Difficult to draft invitations to tender
concerning e.g. levels of microplastics in wastewater as even provisional
guidelines on what to observe and analyse are lacking.

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

Implementation
and monitoring
The implementation of the Plastics Roadmap is started immediately. The
roadmap presents the key implementers and partners for each set of
measures. New stakeholders are also welcome to join in.
The Government and Parliament play a key role in implementing the
roadmap, along with the designated implementers and partners. Measures
spanning several government terms are needed, and these should also get
started as soon as possible.
The next checkpoint for the implementation of the roadmap is in the
spring of 2019. A joint monitoring event will be organised for the cooperation
group and the bodies involved in implementing the roadmap at this point
to evaluate the launch of the measures and progress made. By that time a
more detailed proposal on how the implementation of the Plastics Roadmap
is to be monitored and the measures strengthened in the long term will
also be prepared.
The ideas compiled during the preparation of the roadmap and the
collaborative efforts achieved in this context may serve as inspiration for
launching brand new measures. The outcome of the online idea generation
has been saved and the ideas are available on the website of the Ministry
of the Environment at ym.fi/muovit.
We encourage everyone to get involved in implementing this roadmap
and further developing the ideas together with new partners in the plastics
challenge.

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 A P L AST ICS ROA D MA P FO R FI N L A N D

Plastics Roadmap – compilation

of the ideas generated online

( b ;
117 276 536
ideas comments likes

Reducing
health and Creating
environmental markets
harm
(
( 12 ideas
14 ideas

Collection and recycling Boosting

technologies and value chains innovation and
Consumers research
( and information
(
30 ideas
( 11 ideas
14 ideas

New materials
and eco-design
(
( ( 10 ideas
17 ideas
9 ideas

Avoiding
unnecessary
Global consumption and
challenges and preserving value
opportunities

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

Ideas
COLLECTING AND RECYCLING TECHNOLOGIES AND VALUE CHAINS
• Reorganisation of plastic collection and separating it from producer responsibility
• Obligation for companies to recycle plastics
• Renewable materials without a recycling fee
• Bringing competence in waste management to developing countries and curbing littering with
agreements
• A recycling reward for construction companies
• A company delivering plastic abroad carries responsibility for it
• Favouring plastic-free building products
• Recyclability of packaging depends on the content
• Utilising smart robotics in collecting plastics
• Establishing a Plastics Academy
• Health impacts of plastic, such as phthalates
• Charging 50–70 cents for a plastic carried bag in shops
• Continuing the Ämpäristöteko (‘Bucket Action’) campaign
• Copying the available good ideas
• Producer responsibility for plastic items
• Property-specific plastic collection
• Plastic collection to waste collection centres
• Using kraft paper solutions as mulch instead of plastic
• Joint plastic collection for small businesses
• A campaign that offers solutions: replacing plastic containers at homes
with sustainable alternatives
• Introducing a deposit-refund system to the recycling of plastics
• Increasing the amount of waste containers and burning litter
• Reusable plastic products
• More uses for recycled plastics
• Making use of artificial intelligence
• Recycling plastic used for hay bales
• Chemical recycling
• Expanding the deposit-refund system
• Plastic reception facilities in (EU) ports
• Indicators for monitoring the EU’s circular economy

NEW MATERIALS AND ECODESIGN

• Highlighting plastic-free innovations
• Incentive for companies
• Respecting research and development
• Benchmarking pioneering countries
• Eliminating black plastic from packaging
• Solutions to the (micro)plastics emissions from traffic
• Making sale of products loose the norm
• Biodegradable diapers
• More refillable packaging

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 A P L AST ICS ROA D MA P FO R FI N L A N D

• influencing the packaging industry

• Renewable raw materials
• Multi-material packaging
• Replacement materials
• Cutting the use of materials
• Environmental tax
• Product-driven material design as the key
• New definition for plastics

CONSUMERS AND INFORMATION

• Increasing the sale of products loose in grocery shops
• Reducing unnecessary consumption
• Renaming mixed household waste
• Launching a national information campaign
• Stop talking about waste
• Awareness raising
• Including packaging information in online trade
• Theory of planned behaviour to get citizens actively involved into source-separation of
plastic (among other waste)
• Plastic litter collection campaigns
• Packaging labels
• Clear information that is easy to find
• More plastic collection points!
• Plate model on plastics
• Ecologically sustainable economy

REDUCING HEALTH AND ENVIRONMENTAL HARM

• Discussion on carbon dioxide back in focus
• Chemicals in plastic
• Curbing microplastics
• Fine for littering, e.g. EUR 1,000
• Firm EHS regulations for online trade
• Steering with legislation
• Ban on mixing plastic with soil
• Cleaning the environment from plastics
• Putting an end to littering
• More reliable information
• Supporting companies and products that invest in the circular economy
• Purifying wastewater from microplastic litter
• Harmonising EU legislation

CREATING MARKETS
• Utilising recycled plastics in public procurement
• Updating waste management pricing
• Tax advantages for products made of recycled plastic
• Standardising recycled plastics at the EU level
• Global obligation for the first implementer of slow-cycle carbon to return the same
amount of carbon to the sink
• Raising demand

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 R E DU C E AN D RE FU S E , RECYCL E A N D RE PL ACE

• Aiming at scalability
• Introducing material banks
• Facilitating unexpected collaboration
• Strengthening market-driven RDI activities for recycled plastic products
• Industrial symbioses in Finland, utilisation of FISS activities
• Promoting the market access of plastic-free and biodegradable single-use packaging

BOOSTING INNOVATION AND RESEARCH

• HALAIN innovation
• Innovative materials
• A programme/fund for the development of plastics recycling ecosystems
• Standardising the observation and analysis methods for microplastics
• No burning but composite products!
• Focus on harms instead of plastics
• Investing in cooperation
• Specifying key areas for innovations
• Creating a more detailed picture on the effects
• Preparing a map of plastic and energy streams for Finland
• Investing in solutions

AVOIDING UNNECESSARY CONSUMPTION AND PRESERVING VALUE

• Charging for takeaway containers
• Ban on the sale of plastic carrier bags
• Eliminating empty space in packaging
• Special charge for mail-order products from abroad
• Guiding by information
• Expanding the deposit-refund system
• Green deals
• Reducing overpackaging
• Encouraging the involvement of public actors!
• Tax on plastics

GLOBAL CHALLENGES AND OPPORTUNITIES

• Export subsidy for environmental technology
• Restrictions to export of plastic waste
• Nordic countries as a driver
• Foreign countries pollute!
• Let’s not make an unnecessary fuss
• Making plastic litter uncool
• Making use of international agreements
• Creating value for waste
• Importing to HotSpot countries

The descriptions of the ideas and related discussions are available in the online
publication: ym.fi/Muovit

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35
M INIST RY OF T HE E NV IR ONME N T

Telephone +358 295 16001 (switchboard)

Fax +358 9 1603 9320
Mailing address P.O. Box 35, 00023 GOVERNMENT, Finland
Visiting address Aleksanterinkatu 7, Helsinki

ym.fi